The Cooperation Council meeting in Luxembourg
The European Union and Kazakhstan established diplomatic relations in 1992 and signed a Partnership and Cooperation Agreement (PCA) in 1995. The work of the PCA has been conducted through annual Cooperation Council meetings, which continued with the implementation of an Enhanced Partnership and Cooperation Agreement (EPCA) in 2020. The 21st EU-Kazakhstan Cooperation Council meeting, attended by Deputy Prime Minister and Minister of Foreign Affairs of Kazakhstan Murat Nurtleu and chaired by Peter Szijjártó, Minister for Foreign Affairs and Trade of Hungary, reaffirmed mutual commitments to enhance cooperation across various sectors, including economic growth, governance and transport connectivity. A key focus of the meeting was the EU’s role as Kazakhstan’s foremost trade partner and foreign investor. The EU expressed its strong support for Kazakhstan’s ongoing economic reforms and political modernisation efforts, emphasising the importance of the rule of law, good governance, and anti-corruption measures, stressing the importance of safeguarding fundamental freedoms, such as of expression and assembly, essential in building a strong civil society. The EU’s commitment to supporting civil society in Kazakhstan was further reinforced, particularly concerning the access to funding of non-governmental organisations (NGOs) and civil society organisations (CSOs). As a testament to this commitment, on 30 October 2024, the EU launched a new four-year initiative aimed at strengthening ties with CSOs across Central Asia, in partnership with UNOPS and in collaboration with UN Resident Coordinators and national governments. A major focus of the project will be helping CSOs build their capabilities. UNOPS will offer tailored training and hands-on support to strengthen their core skills, from navigating local regulations to managing financial resources more effectively.
Transport connectivity was another important topic of joint interest, with discussions revolving around developing the Middle Corridor also called the Trans-Caspian International Transport Route (TITR) as part of the EU’s Global Gateway strategy, aimed at enhancing infrastructure connectivity. Both sides also welcomed continued collaboration in the critical raw materials sector, an area vital for Europe’s energy security and technological development. Looking ahead to 2025-2027, the EU and Kazakhstan anticipate adopting a new, ambitious roadmap in this field. Building on Kazakhstan’s participation in the 9-13 December 2024 EU Raw Materials Week, they aim to strengthen their partnership in this increasingly strategic field.
Kazakhstan is the first Central Asian country to have concluded an Enhanced Partnership and Cooperation Agreement (EPCA) with the EU, which officially came into force on 1 March 2020. Discussions have also centred on expanding cooperation under this framework. The agreement has allowed for broadened collaboration across a wide range of sectors, including trade, energy, innovation, and governance. Over the last two decades, significant achievements included the EU and Kazakhstan Memorandum of Understanding (MoU) on Energy Cooperation in 2006, MoU on Strategic Partnerships on Sustainable Raw Materials, Batteries, and Renewable Hydrogen Value Chains in 2022, as well as multiple investment initiatives under the EPCA and the EU’s Global Gateway (GG) Initiative. As the EPCA lays the foundation for their long-term strategic cooperation, its implementation is expected to evolve gradually over the coming years, with both sides committed to regular reviews and adjustments based on progress and emerging global challenges.
Nevertheless, a number of potential challenges may prevent the agreement’s objectives from being fully realised in the near future. These include differences in approaches to governance and human rights norms, where internal realities are not always aligned. While the EU has been supporting reforms related to freedom of expression and assembly, media and civil society freedom restrictions have been a point of concern for the EU. Kazakhstan’s strong reliance on the mining sector may also provide a challenge to economic diversification. While necessary, the EU’s push for economic diversification and reforms is likely to encounter opposition from well-established stakeholders in these fields, making it more difficult to promote innovation and long-term prosperity objectives. Additionally, geopolitical pressures from Russia and China may further complicate Kazakhstan’s efforts to balance its foreign policy interests while strengthening ties with the EU.
Despite these challenges, the Cooperation Council’s meeting demonstrated both parties’ commitment to exploring new opportunities for deeper collaboration, ensuring the EPCA remains a cornerstone of EU-Central Asia relations. Kazakhstan’s role as a key EU partner in Central Asia continues to grow. As the largest economy in the region, Kazakhstan is central to the EU’s broader strategic interests in Central Asia, including energy cooperation, critical raw materials, and prospects of agri-food cooperation. Additionally, transport and connectivity are prominent areas of focus under the Global Gateway (GG) initiative, through which the EU aims to strengthen sustainable, secure, and resilient connectivity with its partners, and Kazakhstan’s abundant resources and strategic location make it a valued partner in these efforts. Notable projects in Kazakhstan under the Global Gateway are the implementation of partnerships on raw materials, batteries and renewable hydrogen, the Team Europe Initiative (TEI) on Digital Connectivity, and TEI on Water, Energy, and Climate.
President Tokayev’s recent state visit to France on 5 November 2024, highlighted Kazakhstan’s growing importance within Europe’s strategic landscape. The agreements signed during this visit reflect France’s proactive approach to deepening bilateral ties with Kazakhstan and emphasise the EU’s commitment to expanding its partnerships in Central Asia. France’s eagerness to collaborate across economic, energy, and infrastructure sectors highlights the mutual benefits expected from strengthened cooperation, especially as the EU looks to diversify its partnerships and supply chains.
Kazakhstan’s value to the EU is especially evident in its role as a major energy supplier and a vital source of critical raw materials, essential for Europe’s green and digital transitions. At the same time, its strategic position along the Trans-Caspian Corridor (TITR) offers vital connectivity solutions that align with the EU’s ambition to enhance the trade routes between Europe and Asia, bypassing Russia. These factors position Kazakhstan as an essential partner for the EU’s long-term objectives in Central Asia and beyond.
Advancing Cooperation
The EU has identified limited transport infrastructure as a major hindrance to Central Asia’s trade with Europe. As Kazakhstan seeks to become an important transit and connectivity hub in Central Asia, connectivity with the EU has become paramount. Ultimately, connecting Kazakhstan with Europe and other regions can help achieve common environmental, economic and geopolitical objectives. Environmentally, the Memoranda of Understanding on energy cooperation and critical raw materials are significant steps in advancing mutual carbon neutrality goals. Economically, the development of the TITR is elevating Kazakhstan’s role as a key transport and trade hub, boosting market access and facilitating efficient logistics between Europe and Asia. Geopolitically, strengthening connectivity would not only deepen EU-Kazakhstan ties but also support regional stability.
The European Union could expand its involvement in Kazakhstan by further supporting the development of transport and logistics infrastructure, complementing its existing focus on critical raw materials, energy, and digital connectivity. Improvements in the ageing railways, highways, and ports could enhance future trade efficiency and reliability. Better connections would benefit Kazakhstan’s economic development as well as provide the EU with additional, alternative trade routes while enhancing economic stability by avoiding overreliance on a limited number of pathways.
The entry of the recently appointed European Commission and the upcoming trio EU presidency offers a good momentum to enhance cooperation and interaction with Kazakhstan from a regional perspective in Central Asia, strengthening trade relations, economic development and stability, as well as in the region as a whole. In this context, the Global Gateway Initiative serves as a constructive framework to advance future cooperation and connectivity.
The EU’s 2019 Central Asia strategy—aimed to facilitate sustainable development and cooperation while building resilience—owes to the perceived geostrategic significance of Central Asia in global trade and security. The geopolitical environment is changing fast, while factors like the return of the Taliban in Afghanistan, the Russia-Ukraine military conflict and peaking tensions in the Middle East may push the EU to revisit its strategy. These events have also featured the increasing relevance of the Trans-Caspian Trade Corridor which has developed into an important alternative approach to trade diversification and decreasing dependence on the traditionally used routes. To date, the EU’s main focus has been on its immediate neighbours. With Central Asia emerging as a key transit and trade region, a revised strategy may be needed to strengthen diplomatic ties, prioritise infrastructure investments that enhance cross-border connectivity, and advance collaborative security initiatives that address regional stability.
Looking ahead, the EU’s relationship with Kazakhstan and Central Asia is poised for a period of significant growth, particularly as both sides adapt to a rapidly changing geopolitical environment. The EU’s Global Gateway initiative and Kazakhstan’s multi-vector approach which supports its strategic role along the Trans-Caspian Corridor, offer promising avenues for enhancing transport, energy, and digital connectivity. Overall, this partnership benefits not only Central Asia but also Europe’s long-term economic and security interests.
The next EU presidency will play a key role in setting priorities for increased engagement in Central Asia, providing momentum and visibility to these efforts. The European Commission, however, will be seen as the main driver in shaping and implementing long-term strategies that establish the EU as a central partner in the region. While challenges remain, particularly around governance and economic diversification, these can be addressed through continued dialogue and strategic partnerships. Such efforts could include technical assistance in policy reform, joint investment projects targeting logistic infrastructure and non-extractive industries, and enhanced regulatory support to create a more resilient economic environment. Central Asia’s increasing importance to Europe, especially in light of the Russia-Ukraine conflict, calls for a renewed focus on cooperation that goes beyond traditional areas and embraces a broader, long-term vision.
Author: Roza Omarova, EIAS Junior Researcher
Photo credits: Pixabay